黨的(de)(de)十九大(da)報告指出，中國特(te)色社會主義進入新時(shi)代，我(wo)國經(jing)濟(ji)已由(you)高(gao)速(su)增長(chang)階(jie)段轉(zhuan)向(xiang)高(gao)質量發(fa)展階(jie)段，正(zheng)處(chu)在轉(zhuan)變發(fa)展方式(shi)、優化經(jing)濟(ji)結構、轉(zhuan)換增長(chang)動(dong)能的(de)(de)攻關期。對于我(wo)國建(jian)(jian)筑(zhu)業(ye)來(lai)說，其規模快速(su)擴張帶來(lai)的(de)(de)發(fa)展正(zheng)在成(cheng)為傳統(tong)建(jian)(jian)筑(zhu)業(ye)面(mian)臨的(de)(de)機遇(yu)和挑戰，加(jia)快推行工(gong)程總承包已成(cheng)為建(jian)(jian)筑(zhu)業(ye)改革發(fa)展的(de)(de)重點(dian)任務(wu)。
加快推行工程(cheng)總承包的緣由
一、黨(dang)中(zhong)央(yang)國務(wu)院高度(du)重視。2016年，《中(zhong)共(gong)中(zhong)央(yang)國務(wu)院關于進一步加(jia)(jia)強城市規(gui)劃建(jian)(jian)(jian)(jian)(jian)設(she)管(guan)理工(gong)(gong)作的若(ruo)干意(yi)見(jian)(jian)》提出(chu)“深(shen)化(hua)建(jian)(jian)(jian)(jian)(jian)設(she)項目組織(zhi)實施方(fang)式改革，推(tui)(tui)廣工(gong)(gong)程(cheng)總承(cheng)包(bao)(bao)制，加(jia)(jia)強建(jian)(jian)(jian)(jian)(jian)筑市場(chang)監管(guan)，嚴厲查(cha)處(chu)轉包(bao)(bao)和(he)違法分(fen)包(bao)(bao)等(deng)行為，推(tui)(tui)進建(jian)(jian)(jian)(jian)(jian)筑市場(chang)誠信體系(xi)建(jian)(jian)(jian)(jian)(jian)設(she)。”2017年，《國務(wu)院辦公廳關于促進建(jian)(jian)(jian)(jian)(jian)筑業持續健康發展的意(yi)見(jian)(jian)》在完善(shan)工(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)(jian)設(she)組織(zhi)模式中(zhong)提出(chu)：“加(jia)(jia)快推(tui)(tui)行工(gong)(gong)程(cheng)總承(cheng)包(bao)(bao)。”全面提出(chu)了加(jia)(jia)快推(tui)(tui)行工(gong)(gong)程(cheng)總承(cheng)包(bao)(bao)的各項具(ju)體要求。
二(er)、建(jian)(jian)筑業(ye)改(gai)革發(fa)展的(de)(de)(de)重(zhong)(zhong)點任(ren)務。2006年以(yi)來，建(jian)(jian)筑業(ye)總產值持(chi)續增長，連(lian)續6年超過20%。2015年增速為2.3%，2016年回升至7.1%，2017年達到(dao)10.5%，今年第(di)一(yi)(yi)季度為13%，整個行業(ye)進入(ru)平穩發(fa)展期。建(jian)(jian)筑業(ye)作為國(guo)民經濟的(de)(de)(de)支柱產業(ye)，存在著行業(ye)發(fa)展方式粗放、監管體制(zhi)機制(zhi)不健全(quan)(quan)、工(gong)程(cheng)建(jian)(jian)設組織方式落(luo)后等(deng)問題。解決問題的(de)(de)(de)重(zhong)(zhong)點任(ren)務之一(yi)(yi)是工(gong)程(cheng)建(jian)(jian)設組織模式的(de)(de)(de)完善改(gai)進。工(gong)程(cheng)建(jian)(jian)設組織模式的(de)(de)(de)主層面(mian)主要包(bao)括建(jian)(jian)設單位(wei)、工(gong)程(cheng)總承(cheng)(cheng)包(bao)、全(quan)(quan)過程(cheng)咨詢(xun)。打破人為分(fen)割及(ji)(ji)碎(sui)片化，責(ze)(ze)任(ren)層次更(geng)明晰，責(ze)(ze)權利更(geng)統(tong)一(yi)(yi)，培(pei)育總承(cheng)(cheng)包(bao)企(qi)業(ye)及(ji)(ji)與(yu)之配套的(de)(de)(de)專業(ye)企(qi)業(ye)，提升企(qi)業(ye)核心競爭(zheng)力。
三、符(fu)合(he)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)客觀規律。真正(zheng)的(de)(de)(de)工(gong)(gong)(gong)程(cheng)(cheng)總(zong)承(cheng)(cheng)包(bao)符(fu)合(he)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)的(de)(de)(de)客觀規律，有(you)(you)利于(yu)實現設(she)(she)計、采購、施工(gong)(gong)(gong)等(deng)(deng)各階段工(gong)(gong)(gong)作的(de)(de)(de)深度(du)融合(he)和(he)資源高(gao)效配置，提高(gao)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)水平；有(you)(you)利于(yu)提高(gao)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)效益(yi)，組織統籌管理(li)(li)設(she)(she)計、施工(gong)(gong)(gong)等(deng)(deng)力(li)量，降(jiang)低管理(li)(li)成本，有(you)(you)效控制投(tou)資，實現工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)項目利益(yi)和(he)價值最大化；有(you)(you)利于(yu)提升(sheng)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)質量安(an)全(quan)，發揮工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)責任主體單一和(he)技術管理(li)(li)優勢，降(jiang)低工(gong)(gong)(gong)程(cheng)(cheng)風險(xian)，確保(bao)工(gong)(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)質量安(an)全(quan)和(he)效益(yi)；從國際(ji)經濟看工(gong)(gong)(gong)程(cheng)(cheng)總(zong)承(cheng)(cheng)包(bao)能夠節省投(tou)資6%，縮短(duan)工(gong)(gong)(gong)期25%以上，更科學更合(he)理(li)(li)進行工(gong)(gong)(gong)程(cheng)(cheng)總(zong)承(cheng)(cheng)包(bao)。
四(si)、推動“一帶一路(lu)”走出去實(shi)施(shi)(shi)。目(mu)前，我國(guo)(guo)有65家企(qi)(qi)業(ye)(ye)(ye)進入2017年度全球最大250家國(guo)(guo)際(ji)承(cheng)包(bao)商(shang)(shang)榜(bang)單，國(guo)(guo)際(ji)業(ye)(ye)(ye)務(wu)占比(bi)13.9%，歐(ou)洲承(cheng)包(bao)商(shang)(shang)平(ping)均74.9%，美國(guo)(guo)承(cheng)包(bao)商(shang)(shang)49.6%。我國(guo)(guo)對外(wai)承(cheng)包(bao)業(ye)(ye)(ye)務(wu)雖然(ran)遍布世界190多個(ge)國(guo)(guo)家和(he)地(di)區，但80%以上的(de)業(ye)(ye)(ye)務(wu)集中(zhong)在(zai)(zai)亞非等新(xin)興和(he)不發(fa)達地(di)區。國(guo)(guo)際(ji)大型(xing)承(cheng)包(bao)商(shang)(shang)BOT（建(jian)設-經營-轉(zhuan)讓）、PPP（政府和(he)社會(hui)資本合作）項目(mu)占75%，中(zhong)國(guo)(guo)建(jian)筑業(ye)(ye)(ye)企(qi)(qi)業(ye)(ye)(ye)EPC項目(mu)及施(shi)(shi)工總承(cheng)包(bao)項目(mu)分別占比(bi)44%和(he)36%，仍處于初級(ji)發(fa)展階段。因此，加(jia)快推行工程總承(cheng)包(bao)，促進行業(ye)(ye)(ye)轉(zhuan)型(xing)升級(ji)，才能有效提升建(jian)筑業(ye)(ye)(ye)企(qi)(qi)業(ye)(ye)(ye)的(de)核心競爭(zheng)力，在(zai)(zai)“一帶一路(lu)”大背景下(xia)，推動企(qi)(qi)業(ye)(ye)(ye)“走出去”戰(zhan)略的(de)實(shi)施(shi)(shi)。
加快(kuai)推(tui)行工程(cheng)總承包(bao)的(de)思(si)考
一、精準(zhun)跟蹤及時(shi)總結。截(jie)至(zhi)目(mu)(mu)前，已(yi)有(you)近20個地方(fang)開始推(tui)行(xing)工程(cheng)總承包，不(bu)僅集(ji)中(zhong)在化工、石油、冶金等工業工程(cheng)，目(mu)(mu)前房屋建筑和市(shi)政基礎設施工程(cheng)也(ye)在積極開展(zhan)。通過已(yi)開展(zhan)的工程(cheng)試點，精準(zhun)跟進跟蹤，及時(shi)總結經驗教訓，少走彎(wan)路。
二、工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)核心與工(gong)(gong)程(cheng)(cheng)(cheng)要求(qiu)。工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)的推行在(zai)借鑒國(guo)(guo)際成熟通(tong)行先進做法的同(tong)時要結合中國(guo)(guo)國(guo)(guo)情。加(jia)(jia)快推行工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)的核心點是促進設計與施工(gong)(gong)深度融合，而不是簡(jian)單疊加(jia)(jia)和大拼盤，要體現經(jing)濟、技術、組織、管理、協調等(deng)資源集(ji)成高效配(pei)置。政府投資工(gong)(gong)程(cheng)(cheng)(cheng)帶頭(tou)推行工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)，裝配(pei)式(shi)建(jian)筑原則上應采用工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)模式(shi)，鼓勵非政府工(gong)(gong)程(cheng)(cheng)(cheng)推行工(gong)(gong)程(cheng)(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)。
三(san)、政(zheng)府規范服務引導推進。加(jia)快完善(shan)工(gong)程(cheng)總(zong)承包相關(guan)的招標投標、施工(gong)許可、竣工(gong)驗收及工(gong)程(cheng)擔保(bao)、保(bao)險等制度規定，盡快出臺管(guan)理辦法和(he)合同(tong)示范文本等。政(zheng)府要(yao)審(shen)慎(shen)包容，市(shi)場(chang)準(zhun)入(ru)更(geng)注重市(shi)場(chang)選(xuan)擇，具備設計或(huo)施工(gong)承包資質開展工(gong)程(cheng)總(zong)承包，更(geng)多交由(you)市(shi)場(chang)選(xuan)擇，有利于生產力的發展。加(jia)快完善(shan)信(xin)用(yong)(yong)體(ti)系，完善(shan)全國(guo)建筑市(shi)場(chang)監(jian)管(guan)公(gong)共(gong)服務平臺，實(shi)現(xian)與國(guo)家信(xin)用(yong)(yong)信(xin)息數據共(gong)享交換，建立建筑市(shi)場(chang)主體(ti)黑(hei)名單(dan)制度，依法依規全面公(gong)開企業和(he)個人信(xin)用(yong)(yong)記錄。另外，還要(yao)加(jia)強事中(zhong)事后監(jian)管(guan)。
四、利益(yi)回(hui)避與責(ze)(ze)任關(guan)系(xi)。由于工(gong)(gong)程(cheng)總(zong)承(cheng)(cheng)包(bao)(bao)企(qi)(qi)(qi)業(ye)（施工(gong)(gong)企(qi)(qi)(qi)業(ye)）與工(gong)(gong)程(cheng)咨詢等企(qi)(qi)(qi)業(ye)存(cun)在著(zhu)制約(yue)關(guan)系(xi)，因此，二者不可(ke)存(cun)在利益(yi)關(guan)系(xi)。按(an)照總(zong)承(cheng)(cheng)包(bao)(bao)負總(zong)責(ze)(ze)的原則，工(gong)(gong)程(cheng)總(zong)承(cheng)(cheng)包(bao)(bao)單(dan)(dan)位(wei)要(yao)承(cheng)(cheng)擔工(gong)(gong)程(cheng)質量安全(quan)、進度(du)控制、成本管(guan)理等方面(mian)的責(ze)(ze)任，對建(jian)設單(dan)(dan)位(wei)負總(zong)責(ze)(ze)，分包(bao)(bao)單(dan)(dan)位(wei)按(an)照合同(tong)(tong)的約(yue)定(ding)對總(zong)承(cheng)(cheng)包(bao)(bao)單(dan)(dan)位(wei)負責(ze)(ze)，減少因責(ze)(ze)任不清對工(gong)(gong)程(cheng)質量安全(quan)生產的影響。企(qi)(qi)(qi)業(ye)在某方面(mian)能(neng)力不足時(shi)，要(yao)允許(xu)總(zong)承(cheng)(cheng)包(bao)(bao)單(dan)(dan)位(wei)按(an)照合同(tong)(tong)約(yue)定(ding)經(jing)建(jian)設單(dan)(dan)位(wei)同(tong)(tong)意，直接(jie)發包(bao)(bao)總(zong)承(cheng)(cheng)包(bao)(bao)合同(tong)(tong)中涵蓋的其他專業(ye)業(ye)務。利益(yi)和責(ze)(ze)任關(guan)系(xi)要(yao)注意防止轉包(bao)(bao)掛靠，總(zong)包(bao)(bao)“包(bao)(bao)而不管(guan)”。
五、現有企業發展問題。在中國建筑業企業中，并不是所有的企業都具有工程總承包能力的，我們的企業多數不是大而全就是小而全，很少能夠達到專、精、實、細。未來企業的發展有兩種情況：一種是鼓勵龍頭建筑與工程設計企業（尤其是特級和大型工程設計企業）做優做強做大，另一種是大量專業特色鮮明的專業企業提升專業能力，做專做精做細做實。龍頭企業與專業企業開展合作，各取所長，優勢互補，避免同質化競爭，形成良好的行業生態。企業本身要找準定位，改變傳統人力資源（培養復合型人才）及傳統組織管理體系，提高技術與管理水平，增強企業核心競爭力。
轉自《中國建設(she)報》
